Editorial From Public Internet to WSIS

Fall 2005 The Internet and WSIS Volume 13 No. 2 Editorial From Public Internet to WSIS [T]he effort at developing the Internet Protocols was international from the beginning. Vint Cerf* The development of the Internet was international from its very beginning in 1973. Major contributions to that development came from the international research community with leadership, financial support and encouragement from the United States government. Because of the public nature of the networks that were connecting to become the Internet, there were acceptable use policies (AUP) that restricted any non public or commercial use. The result was that by 1990, an electronic commons was unfolding and becoming attractive as a new public communications media. Just as the Internet was developing into this public commons, the two major political parties in the U.S. were consolidating a mutual support for market economy. That convergence manifested itself in meetings at Harvard and elsewhere to privatize and commercialize as much of U.S. society as possible: education, health care and the Internet. The U.S. government began its process to privatize the Table of Contents From Public Internet to WSIS........... Page 1 Who Will Control Internet Infrastructure.. Page 2 International Origins of the Internet...... Page 4 IFWP 1998: No Consensus............. Page 9 Internet an Int l Public Treasure Proposal Page 10 Who Are the Stakeholders............ Page 13 Netizen List DNS Discussion.......... Page 14 Cone of Silence... Page 24 http://www.ais.org/~jrh/acn/acn13-2.pdf Internet at such a meeting in 1991. No public discussion or debate was encouraged. Evidence for the effort to change from the public Internet can be seen in the more or less closed mailing list which appeared called the comp-priv mailing list. In the discussion, only postings discussing how to privatization and commercialize the Internet were treated as appropriate. Any attempt to question whether to privatize and commercialize was unwelcome. Another example, U.S. Vice President Al Gore offered in a speech at the International Telecommunications Union (ITU) Buenos Aires meeting March 21, 1994 five principles from the National Information Infrastructure for a Global Information Infrastructure: private investment, market-driven competition, flexible regulatory systems, non-discriminatory access, and universal service. The method to achieve its end was for the U.S. National Science Foundation (NSF) to loosen its acceptable use policy. By 1995, on May 1, the U.S. government was ready to remove such restrictions and to transfer its real property that was part of the backbone of the NSFNET to private entities. This transfer took place even though it was in violation of the 1946 Government Corporation Control Act which forbids such transfer without an authorizing law passed by the Congress. In Fall 1996, a number of groups including the Internet Society tried to develop a mechanism that could replace the U.S. government dominated process for the distribution of Internet names and numbers including control over the authoritative root name server. They called themselves the International Ad Hoc Committee (IAHC) and included participation by the International Telecommunications Union (ITU). The framework they sought to implement was called the generic Top-Level Domain Memorandum of Understanding (gtld-mou). In part their plan would have shifted the root server to Geneva and would have brought intergovernmental Page 1

groups or at least the ITU into what was up until then exclusive U.S. government oversight of the infrastructure of the Internet. This activity drew the attention of the European Union which felt it was still a U.S. dominated activity minus the direct hand of the U.S. government. The EU wanted a mechanism with more European Internet industry involvement. The U.S. government responded by seeking a means to privatize the infrastructure of the Internet in such a way as to assert U.S. corporate (IBM, MCI, AT&T) dominance. It issued a Green and a White paper outlining the principle that the public Internet should be converted into a privatized commercial Internet. In these papers the Internet was changed from a communications network and was replaced by a commercial network. The mechanism to maintain U.S. corporate dominance while having the appearance of a broader purpose was the creation of a corporate-like board-dominated organization. It was called Internet Corporation for Assigned Names and Numbers (ICANN) and started to try to administer the crucial aspects of the infrastructure of the Internet after November 1998, incorporated under the charity laws of California. ICANN began with a secretly chosen Interim Board of directors that was immediately in conflict with many sectors of the Internet industry and with users of the Internet. The secret Interim Board renamed itself the ICANN Initial Board and continued its controversial dominance of Internet governance despite its frequent run ins with country code administrators and other sectors of the broader Internet community. The U.S. government promised to give up control to ICANN but never did. The question of what has come to be called Internet Governance (IG) for which ICANN seems to have failed to be the answer was still being debated at the preparatory meeting for the upcoming World Summit on Information Society which concluded on Sept 30, 2005 in Geneva. (See pages 2-3, this issue). The summit will be held November 16-18, 2005. One goal of the preparatory process was to create a proposal that countries could accept on how to further the spread and development of the Internet. The Geneva meeting did not succeed in solving the thorny problem of Internet Governance. But significant progress has been made clarifying that there is a problem that needs solution. The problem as described in one proposal (see pages 10-13, this issue) to the advisor to the U.S. President in 1998 stated the governance issue must take into account the needs and desires of others outside the United States to participate. Also, it must recognize the need to maintain integrity in the Internet architecture including the management of IP addresses and the need for oversight of critical functions. Further critical needs for the protection for the Internet s infrastructure is described in the Preface to The Internet an International Public Treasure, elsewhere in this issue. In order to provide some perspective for how to approach this problem, we have created this issue of the Amateur Computerist, which is a collection, of articles that have appeared in earlier issues of the newsletter. We also include some of the articles and discussion which followed and critiqued the creation and operations of ICANN. The Internet is an important international communications system. The need is for a model of governance consistent with the nature of the Internet as a communications system and its continuing development. This need has hardly been taken up in the process that has unfolded from 1998 until the World Summit on Information Society. We hope this issue helps to clarify some of the principles needed to further this process. * How the Internet Came to Be in The Online User s Encyclopedia, Bernard Aboba, Addison- Wesley, November 1993 Who Will Control Internet Infrastructure?* At a recent U.N. preparatory meeting for the World Summit on Information Society, the dispute widens by Ronda Hauben Returning Internet Governance to the People As the third preparatory meeting (Prepcom III) for the U.N. s upcoming summit about the Internet and its infrastructure came to an end, a dispute erupted over whether the management of the Internet s names, numbers and protocols should be controlled Page 2

by one nation or by a multinational structure. Brazil, China, India and several other countries insist on a change from the Internet Corporation for Assigned Names and Numbers (ICANN), the entity created by the U.S. government. The U.S. government insists on continued control of ICANN, which operates under the charity laws of California. Many governments believe that this is not an appropriate entity to protect those who depend on the Internet for their economic, political and social needs around the world. The stage is set for a difficult round of negotiations to determine if an agreement can be reached to resolve this dispute in time for the 2nd World Summit on Information Society (WSIS) to be held by the U.N. in Tunis, Nov. 16 to Nov. 18. A representative to the U.N. s planning meeting for the Tunis Summit, Motlhatlhedi Motlhatlhedi, who is Botswana s deputy permanent secretary in the Ministry of Communications, Science and Technology, described how several developing countries support a multinational body to be in charge of the administration of the Internet s infrastructure, rather than only the U.S. government. The general feeling was for a change, as no single country should have control over the Internet, he said. [1] Clarifying the nature of the dispute, the Brazilian Ambassador Antonio Porto explained how the Internet has become a critical part of the political and social life of his country: Nowadays our voting system in Brazil is based on ICTs (Information and Communication Technologies), our tax collection system is based on ICTs, our public health system is based on ICTs. For us, the Internet is much more than entertainment, it is vital for our constituencies, for our parliament in Brazil, for our society in Brazil. Given the nature of this critical resource for Brazil and other countries, Porto asks, How can one country control the Internet? [2] The U.S. representative to the talks, Ambassador David Gross, who is with the U.S. State Department, maintained that the current management organization ICANN should not be changed. He stated that the U.N. ought not to be running the Internet. Gross position is that there can be some flexibility in what ICANN is doing, particularly with regard to the country code domain names like KR for Korea, or US for the United States, but that the current situation is desirable. Pakistan s ambassador and chairman of the U.N. committee, Masood Khan, trying to develop an agreement on these issues, welcomed the U.S. stand. The U.S. has taken a very clear position and has enunciated it and reiterated it both inside and outside the conference, he explained. And that has helped the process because now everybody understands what the U.S. position is. [3] Into this fray stepped the European Union. On Sept. 28, the EU introduced a proposal for a change in who oversees and who is in charge of the Internet s infrastructure. The EU position called for the creation of an international body, but outside of the U.N., to oversee ICANN. The EU also proposed the creation of a multinational entity to oversee and discuss issues related to Internet policy. Under the proposal a cooperative entity would be formed from representatives of governments, the private sector (i.e. corporations), and civil society organizations (i.e. NGOs). Their proposal calls for the initiation of two new processes, at the international level. The 3rd WSIS preparatory meeting for the Tunis Summit made a breakthrough in clarifying the nature of the problem of having one government exercise unilateral control over the administration of the infrastructure of the international Internet. As the UK/EU representative, David Hendon explained, ICANN is under a contract from one government, and the government advises it what to do. It s kind of strange for governments to be advising a public sector body and for that body to be doing things for the whole world under the instruction of one government. [4] While some progress has been made in understanding the nature of the problem, there is as yet no solution. The history of the development of the Internet contains valuable lessons toward understanding how to create an appropriate entity to manage the Internet s infrastructure. This history helps to understand the models that made possible the successful development of the Internet as an international, public and inclusive communications system. Also, online discussion and debate about the problems of the Internet s development by active Netizens has played a critical role in the continuing development and spread of the Internet. [5] While the WSIS process has made a good start at identifying a critical problem needing solution, it has not yet recognized the importance of building on Page 3

the models and practices that have been developed in the evolution of the Internet itself toward helping to shape its future. Notes 1. Internet governance talks stall, Daily News Online, Sept. 29, 2005 2. Kiernen McCarthy, EU deal threatens end to U.S. dominance of Internet, The Register, Sept. 30, 2005, http://www.theregister.co.uk/2005/09/30/eu_deal_wsis/ 3. Kieren McCarthy, WSIS: Who gets to run the Internet? United Nations conference ponders net future, The Register, Sept. 28, 2005, http://www.theregister.co.uk/2005/09/28/wsis_geneva/ 4. Kieren McCarthy, EU outlines future net governance, The Register, Sept. 30, 2005, http://www.theregister.co.uk/2005/09/30/eu_net_governance/ 5. See, for example, my proposal made to the U.S. government in 1998 before ICANN was created, The Internet An International Public Treasure: A Proposal (PDF), http://www.wgig.org/docs/comment-hauben-april.pdf (also, pages 10-13 this issue) *http://english.ohmynews.com/articleview/article_view.asp? no=251118&rel_no=1 The International Origins of the Internet and the Impact of this Framework on its Future* by Ronda Hauben ronda@panix.com [Editor s note: The following is a talk given at Columbia University on Nov. 4, 2004.] The research I have been doing for the past 12 years is about the origin, development and social impact of the Internet. I want to propose that knowing something of the nature of the Internet, of its international origins and early vision and development can provide a useful perspective for looking at a process that is currently ongoing at the initiative of the United Nations. I want to share some of my research about the original vision and the international origins of the Internet and the implications of this heritage on the Internet s future. Just now, over the past two or more years, and continuing through November, 2005, there is a ongoing United Nations initiative in which the world s governments are participating, along with NGO s and corporate entities. Yet this high level activity, as Wired reports, has been largely ignored by those not participating in it. (Wendy Grossman, Nations Plan for Net s Future, October 11, 2004) This process is known as the World Summit on the Information Society (WSIS). After preparatory activities for almost two years, the first of two planned summits was held in Geneva, Switzerland in December 2003. Since that summit, a continuing series of meetings are scheduled to set the foundation for the second Summit which is planned to take place in Tunisia in November of 2005. Heads of state of many nations, particularly developing nations came to the Geneva summit and spoke about the importance of the Internet to the people in their countries and to their present and future economic and social development and well being. The participants recognized that the Internet is an international network of networks, and that it has been built by a great deal of public and scientific effort and funding. The disagreement arises over the nature of the present and future management structure and processes for the governance of the Internet. In 1998 the U.S. government, which had previously overseen the Internet s infrastructure managed as a non commercial, scientific and educational medium, made a decision to begin to transition it to a private sector entity which is called the Internet Corporation for Assigned Names and Numbers (ICANN). In the WSIS process there has been a lot of contention over the form and processes of ICANN. The concern is that ICANN was constructed as a business and technical creation and that this process marginalized governments. Another way of describing this disagreement is that there is a contest about whether the development and management of the Internet and its infrastructure should be left to the market to determine or set by the policies of governments. Page 4

Concern is being raised about what are the issues pertaining to Internet governance. Stimulating the spread of the Internet and who has access is one such issue. Others include safeguarding the Internet s integrity, oversight of the distribution of Internet addresses and domain names, determining the nature of the public interest and how to protect that interest, etc. At the core of this dispute is the question of what kinds of policy decisions need to be made about the Internet and determining the process by which they will be made. The WSIS meetings include those who it is claimed have an interest in questions of Internet governance. These are called the Stakeholders and thus far include representatives from: governments civil society (NGOs) private sector Others are sometimes mentioned, such as the scientific community, or the academic community. In looking back at the origins of the Internet, I feel it is helpful to start with the vision of JCR Licklider, a psychologist, who was invited to begin a research office within the U.S. Department of Defense in Oct 1962. Licklider called the office the Information Processing Techniques Office (IPTO). Licklider was an experimental psychologist who had studied the brain. For his PhD thesis he did pioneering work mapping where sound is perceived in the brain of the cat. Licklider was also excited about the development of the computer and of its potential to further scientific research. He was particularly interested in the potential of the computer as a communication device. He saw it as a means of helping to create a community of researchers and of making it possible to strengthen the education available to the whole society through access to the ever expanding world of information. He envisioned that increased social contact would become available via the computer and computer networks. Licklider created a community of researchers that he called the Intergalactic Network. He had in mind a network of networks. Though it was too early to create such a network when he began at IPTO in 1962, he set a foundation that inspired the researchers that followed him. He returned briefly to head the IPTO from 1974-75 just at the time that the research on the Internet was being developed. In a paper Licklider wrote with another researcher, Robert Taylor in 1968, Licklider outlined a vision for a network of networks. Licklider s vision was of the creation and development of a humancomputer information utility. For this to develop and be beneficial, everyone would have to have access. The network of networks would be global. It wouldn t be just a collection of computers and of information that people could passively utilize. Rather his vision was of the creation of an on-line community of people, where users would be active participants and contributors to the evolving network and to its development. To Licklider, it was critical that the evolving network be built interactively. Also Licklider believed that there would be a need for the public to be involved in the considerations and decisions regarding network development. He recognized that there would be problems with pressure being put on government from other sectors of society and that active citizen participation would be needed to counter these pressures. Licklider, writes:... many public spirited individuals must study, model, discuss, analyze, argue, write, criticize, and work out each issue and each problem until they reach consensus or determine that none can be reached at which point there may be occasion for voting. Licklider believed that those interested in the development of the global network he was proposing, would have to be active in considering and determining its future. He also advocated that the future of politics would require that people have access to computers to be involved in the process of government. Licklider writes: Computer power to the people is essential to the realization of a future in which most citizens are informed about, and interested and involved in the Page 5

process of government. Licklider and other computer pioneers of the 1950s and 1960s were concerned with the public interest and how the computer and networking developments of the future would be maintained in the public interest. Licklider writes that it is important to not only seek to consider the public interest, but also to make it possible for the public to be involved in the decision making process: [Decisions] in the public interest but also in the interest of giving the public itself the means to enter into the decision-making process that will shape their future. (This diagram is from a memo by Vint Cerf, but it is not an actual plan for the Internet.) Through the 1960s and into the early 1970s the IPTO pioneered new and important computer technology like the time-sharing of computers and then the creation of packet switching and the ARPANET computer network. The research was written up in professional publications and widely distributed. By the late 1960s and early 1970s it was recognized that there was widespread interest in developing computer networking in countries around the world. A conference was held in 1972 at the Hilton Hotel, in Washington DC from October 24-26. More than a thousand researchers from countries around the world attended and participated in the demonstration by U.S. researchers that packet switching technology was functional. The demonstration excited many of the researchers. Also, however, international participation was recognized as critical to the development of networking technology. International participation is no mere adornment to the Conference, the organizers wrote. It is a primary means towards achieving a diversity of interest and viewpoint. At the conference, a group was formed of those working on networking developments in different countries. It was called the International Network Working Group (INWG). The great interest worldwide in computer networking was stimulating, but also it presented a problem. To understand the nature of this problem, it is helpful to consider the fact that there were packet switching networks being developed in different countries. These included Cyclades in France, NPL in Great Britain, and ARPANET in the U.S. These networks were different technically and were under the ownership and control of different political and administrative entities. Yet networking researchers realized the importance of making it possible for these networks to be able to interconnect, to be able to communicate with each other. This can be articulated as the Multiple Network Problem. There was the recognition that no one of these different networks could become an international network. There would need to be some means found to make communication possible across the boundaries of different networks. Collaboration among the researchers continued, with a number of meetings and exchanges about how it would be possible to design and create a means to support communication across the boundaries of these diverse networks. At a meeting in Sept 1973 at the University of Sussex, in Brighton, England, two U.S. researchers, Bob Kahn and Vinton Cerf presented a draft of a paper proposing a philosophy and design to make it possible to interconnect different networks. The basic principle was that the changes to make communication possible would not be required of the different networks, but of the packets of information that were traveling through the networks. To have an idea of the concept they proposed it is helpful to look at a diagram to show what the design would make possible. In the gateways, changes to the packets would be made to make it possible for them to go through the networks. Also the gateways would be used to route the packets. The philosophy and design for an Internet was officially published in a paper over 30 years ago, in May 1974. The paper is titled A Protocol for Packet Network Intercommunication by Vinton Cerf and Robert Kahn with thanks to others including several from the international network research community for their contributions and discussion. Describing the process of creating the TCP/IP protocol, Cerf explains that the effort at developing the Internet protocols was international from its very beginnings. Peter Kirstein, a British researcher at the University College London (UCL) presented a paper Page 6

in Sept. 1975 at a workshop in Laxenberg, Austria, describing the international research process. This workshop was attended by an international group of researchers, including researchers from Eastern Europe. Kirstein reports on research to create the TCP/IP protocol being done by U.S. researchers, working with British researchers and Norwegian researchers. Above is the diagram that Kirstein presents showing the participation of U.S. researchers via the ARPANET, along with British researchers working at the University College London (UCL) and Norwegian researchers working at NORSAR. the book Netizens, Michael Hauben, did some pioneering on-line research as part of class projects in his studies at Columbia University. He explored where the networks could reach and what those who were on-line felt was the potential and the problems of the developing Internet. In this map you can see the areas of the world where TCP/IP networking was possible, the areas where there was access to BITNET but not the Internet and the areas there was only e- mail access via different networking possibilities like uucp, FIDONET or OSI (X.25), etc. Schematic of UCL configuration, July 1975. Collaboration between the Norwegian, British and U.S. researchers continued, demonstrated by the research to create a satellite network, called SATNET. Later researchers from Italy and Germany became part of this work. Describing this international collaboration, Bob Kahn writes: SATNET... was a broadcast satellite system. This is if you like an ETHERNET IN THE SKY with drops in Norway (actually routed via Sweden) and then the U.K., and later Germany and Italy. Networking continued to develop in the 1980s. Among the networking efforts were those known as Usenet (uucp), CSnet, NSFnet, FIDONET, BITNET, Internet (TCP/IP), and others. By the early 1990s TCP/IP became the protocol adopted by networks around the world. It is also in the early 1990s that my co-author of SATNET In the process he discovered that there were people on-line who were excited by the fact that they would participate in spreading the evolving network and contributing so that it would be a helpful com- Page 7

munication medium for others around the world. Michael saw these users as citizens of the net or what at the time was referred to as net.citizens Shortening the term to netizen, he identified and documented the emergence of a new form of citizenship, a form of global citizenship that is called netizenship. Netizens: On the History and Impact of Usenet and the Internet published by the IEEE Computer Society Press, 1997, ISBN 0-8186-7706-6 with Licklider s vision of the crucial nature of citizen participation in the network s development. On-line, there is a forum involved with the WSIS process. But few people who are involved with WSIS seem to pay attention to it. However, a comment on the forum seemed quite relevant to the problems being raised. A contributor to the forum, Safaa Moussa was from Egypt. Moussa, too, echoed Licklider s concerns, writing that the crucial issues of Internet governance involve the issue of public access and the issue of how to widen the scope of public engagement in the decision making process. Describing these on-line citizens, the netizen Michael writes: They are people who understand that it takes effort and action on each and everyone s part to make the Net a regenerative and vibrant community and resource. Netizens are people who decide to devote time and effort into making the Net, this new part of our world, a better place. (Michael Hauben, 1995) What are the implications of this background to the WSIS process? In October 1998, the U.S. government decided it needed to privatize the Internet s infrastructure. It created ICANN, the Internet Corporation for Assigned Names and Numbers. ICANN provided only minimal input for governments in an official way or for Internet users. There have been many problems with the structure and functioning of ICANN and lots of criticism. The WSIS process led to holding a Summit in Geneva in December 2003. A number of heads of state attended. Issues raised included: Affordable access available to all, what would be the role for Governments in Internet governance? What would be the role for others in Internet governance? In February 2004 a workshop was held to try to determine the components of Internet governance. At the workshop there was a proposal for netizens to be involved in Internet governance, recommending that netizen involvement would make it possible to counter the self interest of corporations who were part of the Internet governance process. The following diagram was submitted by Izumi Aizo of Japan. It still shows only a minimal role for governments but it introduces a role for netizens which is in line In September 2004, a meeting was held in Geneva. Many contributions to that meeting seemed in line with the vision Licklider expressed to guide computer network development. But there was contention, also. Summarizing the conflict that has developed in the WSIS process, a representative of Egypt, H. E. Dr. Tarek Kamal, explains that there are two conflicting view points. One view is that Internet governance involves primarily technical and operative issues which can be best coordinated by technical groups and business organizations (this is the view of those in favor of ICANN). The other view pointed to by Dr. Kamal is that technical resource management and other policy matters concerning the Internet are social and public questions needing international and government participation. At the September 2004 meeting, supporting this second viewpoint, a member of the Brazil delegation, Jose Marcos Nogueira Viana, proposed the need to create an inter-governmental forum a meeting place for governments to discuss Internet related issues. Also putting public interest into the debate, was Hans Falk Hoffman, a representative from the international Page 8

scientific institution CERN. He described how the scientific community would continue to try to connect universities and therefore major cities to the global network with sufficient bandwidth at affordable prices. A representative from the Chinese delegation Madam Hu Quiheng, explained how: The Internet is a resplendent achievement of human civilization in the 20th century. And that government has to play the essential role in Internet governance...creating a favorable environment boosting Internet growth while protecting the public interests. I want to propose that this activity as part of the WSIS process demonstrates the importance of understanding the fact that the Internet is international and that there is a demand for an international management process and structure. Similarly, and perhaps even more important is the need to understand how to determine the public interest. In connection with this goal, I want to propose the need to seriously consider whether the goal of netizen empowerment is one of the important policy issues to be injected into the WSIS process. This would imply the need to provide means for the on-line community to be able to be active participants in the WSIS process. In the on-line forum on 09 September 2004, Safaa Moussa wrote: This on-line forum constitutes an important part of mobilizing efforts for the pursued effective outcome. But, in view of the wide-ranging aspects that Internet Governance covers, I believe it is duly important to make clearer the inclusion of on-line contributions into the decision-making process. On-line interaction and feedback need to be seen all along the decision-making and implementation processes. Another point I would like to underline is the creation of on-line working groups to help integrate and coordinate initiatives and efforts undertaken at national regional and international levels. (Safaa Moussa s post can be seen at: http:// www.wsis-online.net/igov-forum/forums/messageview?message_id=416031 ) The Tunis Summit will take place in November 2005. Will it be able to meet the challenges of the continuing development and spread of the Internet? There are promising signs that the public and international essence of the Internet as envisioned by JCR Licklider which were so important in the origin and development of the Internet are being taken up. But will there be a means of welcoming the on-line community, the community of netizens into the WSIS process? Will there be a convergence of netizen participation and defense of the public essence of the Internet strong enough for the results of the Tunis summit to be significant? *[Reprinted from Amateur Computerist Vol. 12 no.2, http://umcc.ais.org/~jrh/acn/back_issues/back_issues[2003-2005]/acn12-2.pdf] IFWP 1998: No Consensus* [Editor's note: For a few months in 1998 just preceding the invention of ICANN, a process took place of international meetings and mailing list discussions called the International Forum on the White Paper (IFWP). From its very beginning, the IFWP followed almost as little democratic procedure as did ICANN. The following is a report from the second international meeting of the IFWP process.] The International Forum on the White Paper one and a half day meeting held after the INET conference ended was not a planned extension of INET98 but a last minute event. The U.S. government has had oversight and control of the domain name and root server systems that allow all users on the Internet to send messages and packets to each other no matter where they are. This is achieved via a conversion of domain name addresses into numeric addresses. The U.S. government confirmed its intention in a White Paper issued June 5, 1998, to end this historic role on September 30 of this year. The White Paper presented by presidential advisor Ira Magaziner had as its purpose the formation of a new private entity to control and manage the root server and domain name systems which are the central control and nerve center of the Internet. The IFWP meeting in Geneva was organized to approve and help give international support and form to the new private organization. The method to achieve such support was to disallow any opposition to privatization. The sessions were chaired in such a way that all opposition and most discussion was discouraged and there were frequent Page 9

calls for a consensus. Even when it appeared as many as half or more people were confused or openly opposed to proposed structures or powers of the new body the chairs often declared that consensus had been achieved and that the next issue was in order. Since the changes being proposed concern the future of the Internet, e.g., whether it would be the interconnection of different networks or of only networks adhering to commercial concerns about security, they require careful consideration and the hearing of points of view from across the Internet user spectrum. But the IFWP meeting was not set up to allow such democratic procedure. The meeting ended with the declaration by the organizers that a large degree of consensus had been achieved. Those who opposed or disagreed with the process or the purpose of privatization of the nerve center of the Internet left the meeting very frustrated. Another such meeting was planned by the IFWP for Singapore in mid August while other follow up meetings and activities were planned by other forces. The value of these IFWP meetings was that they have alerted a body of people to significant changes that are being planned for the Internet. *[Reprinted from Amateur Computerist Vol. 9 no. 1, http://umcc.ais.org/~jrh/acn/back_issues/back_issues[1998-2002]/acn9-1.pdf] [Editor's note: The following Preface and Proposal were submitted to Ira Magaziner and the U.S. government in early September 1998 in response to the White Paper. They proposed a prototype that would build on the lessons learned during the Internet's development.] The Internet an International Public Treasure A Proposal by Ronda Hauben ronda@panix.com Preface In testimony before the Subcommittee on Basic Research of the Committee on Science of the U.S. Congress on March 31, 1998, Robert Kahn, coinventor of TCP/IP, indicated the great responsibility that must be taken into account before the U.S. government changes the administrative oversight, ownership and control of essential aspects of the Internet that are part of what is known as the Domain Name System (DNS). Kahn indicated that the governance issue must take into account the needs and desires of others outside the United States to participate. His testimony also indicated a need to maintain integrity in the Internet architecture including the management of IP addresses and the need for oversight of critical functions. He described how the Internet grew and flourished under U.S. government stewardship (before the privatization - I wish to add) because of two important components. 1) The U.S. government funded the necessary research. 2) It made sure the networking community had the responsibility for its operation, and insulated it to a very great extent from bureaucratic obstacles and commercial matters so it could evolve dynamically. He also said that The relevant U.S. government agencies should remain involved until a workable solution is found and, thereafter retain oversight of the process until and unless an appropriate international oversight mechanism can supplant it. And Kahn recommended insulating the DNS functions which are critical to the continued operation of the Internet so they could be operated in such a way as to insulate them as much as possible from bureaucratic, commercial and political wrangling. When I attended the meeting of the International Forum on the White Paper (IFWP) in Geneva in July, which was a meeting set up by the U.S. government to create the private organization to take over these essential DNS functions September 30, 1998, none of the concerns that Kahn raised at this Congressional hearing were indicated as concerns by those rushing to privatize these critical functions of the global Internet. I wrote a report which I circulated about the political and commercial pressures that were operating in the meeting to create the Names Council that I attended. (See Amateur Computerist Vol. 9 no. 1, Report from the Front, Meeting in Geneva Rushes to Privatize the Internet DNS and Root Server Systems.) But what is happening now with the privatization plan of the U.S. government involves privatization of the functions that coordinate the International aspects of the Internet and thus the U.S. government has a Page 10

very special obligation to the technical and scientific community and to the U.S. public and the people of the world to be responsible in what it does. I don t see that happening at present. A few years ago I met one of the important pioneers of the development of time-sharing, which set the basis for the research creating the Internet. This pioneer, Fernando Corbató, suggested I real a book Management and the Future of the Computer which was edited by Martin Greenberger, another timesharing pioneer. The book was the proceedings of a conference about the Future of the Computer held at MIT in 1961 to celebrate the centennial anniversary of MIT. The British author, Charles Percy Snow made the opening address at the meeting and he described the importance of how government decisions would be made about the future of the computer. Snow cautioned that such decisions must involve people who understood the problems and the technology. And he also expressed the concern that if too small a number of people were involved in making important government decisions, the more likely it would be that serious errors of judgment would be made. Too small a number of people are being involved in this important decision regarding the future of these strategic aspects of the Internet and too many of those who know what is happening and are participating either have conflicts of interest or other reasons why they are not able to consider the real problems and technological issues involved. (About the 1961 conference, see chapter 6 of Netizens at http://www.columbia.edu/~rh120) What is happening with the process of the U.S. government privatization of the Domain Name System is exactly the kind of danger that C.P. Snow warned against. I have been in contact with Ira Magaziner, senior advisor to the U.S. President on policy with these concerns and he asked me to write a proposal or find a way to put my concerns into some operational form. The following draft proposal for comment is my beginning effort to respond to his request. Proposal Toward an International Public Administration of Essential Functions of the Internet The Domain Name System Ronda Hauben ronda@panix.com Recently, there has been a rush to find a way to change significant aspects of the Internet. The claim is that there is a controversy that must be resolved about what should be the future of the Domain Name System. It is important to examine this claim and to try to figure out if there is any real problem with regard to the Domain Name System (DNS) that has to be solved. The Internet is a scientific and technical achievement of great magnitude. Fundamental to its development was the discovery of a new way of looking at computer science.(1) The early developers of the ARPANET, the progenitor of the Internet, viewed the computer as a communication device rather than only as an arithmetic engine. This new view, which came from research conducted by those in academic computer science, made the building of the ARPANET possible.(2) Any changes in the administration of key aspects of the Internet need to be guided by a scientific perspective and principles, not by political or commercial pressures. It is most important to keep in mind that scientific methods are open and cooperative. Examining the development of the Internet, an essential problem that becomes evident is that the Internet has become international, but the systems that allow there to be an Internet are under the administration and control of one nation. These include control over the allocation of domain names, over the allocation of IP addresses, over the assignment of protocol numbers and services, as well as control over the root server system and the protocols and standards development process related to the Internet. These are currently under the control and administration of the U.S. government or contractors to it. Instead of the U.S. government offering a proposal to solve the problem of how to share the administration of the DNS, which includes central points of control of the Internet, it is supporting and encouraging the creation of a new private entity that Page 11

will take over and control the Domain Name System. This private entity will magnify many thousands fold the commercial and political pressures and prevent solving the genuine problem of having an internationally shared protection and administration of the DNS, including the root server system, IP number allocations, Internet protocols, etc. Giving these functions over to a private entity will make it possible for these functions to be changed and for the Internet to be broken up into competing root servers, etc. It is the DNS whose key characteristic is to make the internetwork of networks one Internet rather than competing networks with competing root server systems, etc. What is needed is a way to protect the technology of the Internet from commercial and political pressures, so as to create a means of sharing administration of the key DNS functions and the root server system. The private organization that the U.S. government is asking to be formed is the opposite of protecting the Internet. It is encouraging the take over by a private, non-accountable corporate entity of the key Internet functions and of this international public resource. In light of this situation, the following proposal is designed to establish a set of principles and recommendations on how to create an international cooperative collaboration to administer and protect these key functions of the Internet from commercial and political pressures. This proposal is to create a prototype for international cooperation and collaboration to control and support the administration of these key Internet functions. I. The U.S. government is to create a research project or institute (which can be in conjunction with universities, appropriate research institutes, etc.). The goal of this project or institute is to sponsor and carry out the research to solve the problem of what should be the future of the DNS and its component parts including the root server system. II. The U.S. is to invite the collaboration (including funding, setting up similar research projects, etc.) of any country or region interested in participating in this research. The researchers from the different nations or regions will work collaboratively. III. The researchers will, as much as possible, utilize the Internet to carry out their work. Also they will develop and maintain a well publicized and reachable online means to support reporting and getting input into their work. They should explore Usenet newsgroups, mailing list and web site utilization, and where appropriate RFC s etc. IV. With clearly set dates for completion, the collaborative international research group will undertake the following: 1) To identify and describe the functions of the DNS system that need to be maintained. (The RFC s or other documents, that will help in this, need to be gathered and references to them made available to those interested.) 2) To examine how the Internet and then how the DNS system and root server system are serving the diverse communities and users of the Internet, which include among others the scientific community, the education community, the librarians, the technical community, governments (National as well as local), the university community, the art and cultural communities, nonprofit organizations, the medical community, the business community, and most importantly the users whoever they be, of the Internet. 3) To produce a proposal at the end of a specified finite period of time. The proposal should include: a) an accurate history of how the Internet developed and how the Domain Name System developed and why. b) a discussion of the vision for the future of the Internet that their proposal is part of. This should be based on input gathered from the users of the Internet, and from research of the history and development of the Internet. c) a description of the role the Domain Name System plays in the administration and control of the Internet, how it is functioning, what problems have developed with it. d) a proposal for its further administration, describing how the proposal will provide for the continuation of the functions and control hitherto provided by U.S. government agencies like NSF and DARPA. Also, problems for the further administrations should be clearly identified and proposals made for how to begin an open process for examining the problems and solving them. e) a description of the problems and pressures that they see that can be a danger Page 12

for the DNS administration. Also recommendations on how to protect the DNS administration from succumbing to those pressures. (For example from pressures that are political or commercial.) In the early days of Internet development in the U.S. there was an acceptable use policy (AUP) that protected the Internet and the scientific and technical community from the pressures from political and commercial entities. Also in the U.S., government funding of a sizeable number of people who were the computer science community also protected those people from commercial and political pressures. f) a way for the proposal to be distributed widely online, and the public not online should also have a way to have access to it. It should be made available to people around the world who are part of or interested in the future development of the Internet. Perhaps help with such distribution can come from international organizations like the ITU, from the Internet Society, the IETF, etc. g) comment on what has been learned from the process of doing collaborative work to create the proposal. It should identify as much as possible the problems that developed in their collaborative efforts. Identifying the problems will help clarify what work has to be done to solve them. h) It will be necessary to agree to some way to keep this group of researchers free from commercial and political pressures government funding of the researchers is one possible way and maybe they can be working under an agreed upon Acceptable Use Policy for their work and funding. This proposal is an effort to figure out what is a real way to solve the problem that is the essential problem in the future administration of the Internet. If the principles and prototype can be found to solve this problem, they will help to solve other problems of Internet administration and functioning as well. Notes: (1) See Michael Hauben, Behind the Net: The Untold Story of the ARPANET and Computer Science, in Netizens: On the History and Impact of Usenet and the Internet, IEEE CS Press, 1997, p. 109. See also Internet, nouvelle utopie humaniste? by Bernard Lang, Pierre Weis and Veronique Viguie Donzeau- Gouge, Le Monde, September 26, 1997, as it describes how computer science is a new kind of science and not well understood by many. The authors write: L informatique est tout a la fois une science, une technologie et un ensemble d outils. Dans sa pratique actuelle, l introduction de l informatique a l ecole, et malheureusement souvent a la universite, est critiquable parce qu elle entretient la confusion entre ces trois composantes. (2) Ibid. The draft proposal The Internet an International Public Treasure is online in English and French at: http://www.columbia.edu/~ronda/other/ Submitted to the NTIA of the U.S. Department of Commerce. [Editor's note: The following is excerpted from the editorial introducing a Special Issue of the Amateur Computerist concerning Stakeholders in the DNS Controversy (July 1998).] Who Are the Stakeholders in the DNS Controversy Over the Future of the Internet?* On June 5, 1998 the U.S. government issued a White Paper elaborating its plans and position to fundamentally change the control and ownership over the Domain Name System (DNS) that is the nerve center of the Internet. The basic premise of the White Paper is that the DNS must be put into private hands. Such changes are very important issues for the public of the U.S. and around the world to consider and discuss as the Internet, in the words of Judge Dalzell of the U.S. Federal District Court, is: a far more speech enhancing medium than print, the village green or the mails. In the court case of ACLU vs. Reno over the Communications Decency Act, the Federal Court Judges wrote that The Internet is... a unique and wholly new medium of worldwide communication. In his opinion in that case, Judge Dalzell goes on to direct the U.S. government saying, We should also protect the autonomy that such a medium confers to ordinary people as well as media magnates. Does the White Paper issued by the U.S. government undertake to protect the autonomy that the Internet confers to ordinary people? Will placing the Page 13